NATIONAL REPORT
INTEGRATING MANAGEMENT OF WATERSHEDS
& COASTAL AREAS IN SIDS OF THE CARIBBEAN
THE VINCENTIAN PERSPECTIVE
JUNE 2001
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EXECUTIVE SUMMARY
While the issue of watershed management is well understood and reasonably well
established in St. Vincent, integrated management of watershed and coastal areas is
not a theme on the work programme for any executing agency on the island. Little
wonder that the Island Systems Management (ISM) propagated by the
Organisation of East Caribbean States Natural Resources Management Unit
(OECS-NRMU) has not gained meaningful acceptance. However, cooperation vis-
à-vis the shearing of expertise and resources among and between agencies is
increasing. Also, initiatives emerging from the UNFCCC, UNCCD and UNCBD
are providing vehicles to foster integrated management.
There is a fair amount of data existing as per water resources and management but
the absence of a central database on water resource management means that the
data lacks harmony, consistency, and format. Such data is of little value to policy
makers and is often ignored when forward planning is being done.
There is much concern about the quality of coastal water and its impact on health
and tourism. Government is concerned about coastal pollution and erosion and is
actively addressing these issues. The establishment of a water quality monitoring
programme above and beyond that currently undertaken by the Central Water and
Sewage Authority (CWSA) and the Environmental Health Department is
necessary. There is need for
· a monitoring programme to include pesticide residue and heavy metals
· institutional strengthening training on the job for the job
· policy development
· greater public awareness and involvement
to create a truly integrated programme. Both coastal and surface water in St.
Vincent is heavily impacted by land use. However, efforts by the CWSA have
gone a long way in improving the quality and availability of potable water in St.
Vincent.
While there is no scarcity of fresh water in St. Vincent, the Grenadines is devoid of
surface water. For this reason, some underground water is used in the Grenadines
but not on mainland St. Vincent. The Coastal waters of the Grenadines have
similar problems to those of St. Vincent.
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INTRODUCTION
Although it is well established that the availability of water and land space holds
the key to development in small island states like St. Vincent, the competition for
land and water by stakeholder groups coupled with the management arrangement
for these resources, create a dynamic mix that has the potential to hasten the
destruction of both resource. It is therefore critical that appropriate management
systems be put in place to allow all involved to get maximum benefit with as little
damage as possible to the resources. This project on Integrating Management of
Watersheds and Coastal Areas as proposed by CEHI can be the catalyst for the
evolution of an appropriate management system. Implementation of this project in
parallel with activities under the UNCCD, UNFCCC, UNCBD and other local
initiatives, taking cognizance of the NRMU-ISM and the SIDS POA as reflected in
the National Environmental Action Plan (NEAP), considerable progress can be
made in the management of land and water resources.
There is, however, a need for the development and implementation of policies to
support the various initiatives. There are some very strong pillars that need to be
linked and built upon, some acts that need regulation and enforcement and some
agencies that lack human resources. The distribution of authorities presented
below serves as an illustration.
The CWSA Act of 1991 puts all fresh water under the control of the CWSA (a statutory
body under the Ministry of Health and the Environment) while the Forestry Conservation
Act of 1992 puts all forested crown lands and mangrove under the control of the Forestry
Department (a division of the Ministry of Agriculture and Labour). The Lands and
Survey Department (a division of the Ministry of Agriculture and Labour) manages
crown lands not under the control of the Forestry Department. The Central Planning
Department ( a division of the Ministry of Finance and Planning) gives legitimacy to all
development on the island including coastal development and subdivision of lands.
The foregoing scenario speaks of the need for harmonizing legislation among the
agencies while fostering interagency cooperation as a possible first step in the
development of a truly integrated management plan.
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CHAPTER 1
SUPPLY AND DEMAND
It is a common belief that the supply of surface water (rivers and springs) in St.
Vincent is more than enough to meet developmental needs well into the future.
The CWSA has stated that the current demand for potable water in St. Vincent is
just above 1% of the available supply. However, recent climatic and
socioeconomic trends call this statement to question. Bishop (1989) and Murray
(1993, unpublished) point to scenario that indicates a slow but steady decline in
flow volume of many rivers in St. Vincent. More noticeable than the decline in
quantity is the deterioration in quality of surface water.
Watershed in St. Vincent is synonymous with forest reserves. Thus, any impact on
forest is an impact on watershed. The Forestry Department claims a 29% forest
cover while the 1986 National Environmental Profile records a 35% forest cover.
This represents a decrease of approximately 17% in 15 years. Such rapid decline
in forest cover will reduce rainfall percolation hence soil water retention and
stream flow. At the same time, deforestation results in increase soil erosion
leading to sedimentation and loss of water quality.
The greatest challenge to watersheds in St. Vincent is the illegal clearing of the
land for agriculture. Only a small portion (<1%) of logging is done for charcoal
burning. Because modern agriculture is characterized by high-level agrochemical
use, farming in watershed areas reduces not only the quantity but also the quality
of surface water. Approximately 20% of all chemicals used in agriculture in St.
Vincent between the months of July and December ultimately ends up in rivers and
streams (Murray 1993).
Eco-tourism is proving to be the latest threat to watersheds in St. Vincent. Since
most wildlife reserves are located in watershed areas, the desire to enter these areas
is increasing in order to provide the eco-tourism product. To facilitate this activity,
footpaths are cleared. After several trips along these paths, the loose volcanic soil
erodes resulting in gullies and more erosion.
Forested areas and their products are in great demand in St. Vincent. This demand
is driven by the need for firewood, lumber, wild life for recreation and food, and
water and land space for housing and agriculture. Without the water, all other
activity will cease. Water is therefore the object of much competition. This
competition should, however, be understood within the context of natural
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partitioning, for while potable water is collected in higher elevations, agricultural
supply is taken from the lower elevations where most of the agriculture takes
place. Water supply for hydroelectricity is taken from rivers not tapped for potable
consumption and normally from the middle course of the river where volume and
velocity are sufficiently high to facilitate the generation process.
DOMESTIC DEMAND: Domestic demand for water is increasing with the
changes in life style and housing patterns. Large homes with increased numbers of
WC, large lawns to be watered, two cars to be washed and frequent showers in hot
weather, all add up to force the CWSA to improve its collection, treatment and
distribution capability. In response, the CWSA has installed meters on most
domestic lines. This added cost to home owners', apart from helped the CWSA
meet its financial obligations, has reduced wastage and allow the CWSA to meet
current domestic needs for high quality potable water.
TOURISM DEMANDS: Tourism is one of the fastest growing sectors of the
Vincentian economy. However, it is well known that the per capita demand for
fresh water by the tourism sector is about four times that demanded by local
residents. Additionally, coastal resources, including water, are major components
of the tourism product. At the same time, the coastal waters of St. Vincent and the
Grenadines are negatively impacted by wastewater from hotels and entertainment
centers located on the coast.
AGRICULTURAL DEMANDS: The pressures of globalization have forced the
agricultural sector in St. Vincent to introduce an irrigation system. The system is
being used by the banana industry to main fruit quality and quantity during the dry
season, thus maintain a place in the European market. The irrigation system is just
emerging, hence, its demand for water is still growing. Currently the system
supports 1200 acres with plans to extend to 2000 acres by 2001. This acreage is
expected to utilize most of the available dry season river flow in the country. Any
expansion of irrigation beyond this point will depend on the results of a
hydrological study slated for 2001. While the true impact of this initiative is being
determined, there are several traditional irrigation systems (back yard garden and
small family plots) in operation on the island. Some of these operations use water
collected from rooftops, others depend solely on pipe borne water. Root crop
cultivation on the island uses traditional knowledge. Planting is done towards the
end of the dry season so that the young plants take full advantage of the rain season
during their period of growth and development. Most of the agriculture done in St.
Vincent is rain fed (approximately 17,000 acres). There are plans to improve rain
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fed agriculture by improving extension services to farmers and emphasizing crop
diversification away from bananas. This is an attempt to improve food security
without increasing water demand.
The irrigation system being developed in St. Vincent uses mini sprinklers or
drippers. This method is reputed to be highly water efficient. There is therefore no
drainage associated with the system. This is further obviated by the topography of
the land, the porous nature of the volcanic soil and the low water table. The area
currently being irrigated has good access roads with proper drainage that will carry
away any spill that may occur.
The irrigation scheme in St. Vincent is very new, hence issues like salinity has not
been observed. Given the fact that the surface water in St. Vincent is almost
devoid of salts and that the water table is low it is doubtful that salinity will be a
problem. The major environmental impacts associated with irrigation in St.
Vincent is the stress to aquatic life occasioned by the reduction in stream flow, and
the change/loss of flora and fauna associated with the change of land use. The
competing water demands does not limit irrigation activities in St. Vincent.
However, if the observed decline in stream volume should continue or escalate or
if climate change should result in decrease precipitation or drought then the
irrigation process can be seriously impeded. The current decrease in forest cover
and the accompanying soil erosion has reduced soil percolation. This will reduce
soil water retention and increase irrigation demands with decreasing water
resource.
HYDROELECTRICITY DEMAND: For many years, the St. Vincent Electricity
Services (VINLEC) has maintained a hydroelectric plant at South Rivers. With the
growing cost of fossil fuel however, the company saw prudence in the installation
of a second plant on the Cumberland River. To meet the water needs of the plant,
water was diverted from a river on the Richmond side. Consequently, the river on
the Richmond side remains dry for most of the year negating any water related
activity in that area.
INDUSTRIAL DEMANDS: There are no large industrial operations in St.
Vincent. However, Bottlers St. Vincent Ltd. and Hairoun Brewery Ltd. are
operations that are water dependent. There are several other operations including
the East Caribbean Group of Companies, concrete block makers and a number of
cottage industries whose operations are water dependent.
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The foregoing summary points to increase demands on water resources and
management system. The management agency (CWSA) has responded well by
expanding its services at enormous cost. In order to maintain this performance, all
services provided by the agency come with a cost. The following tables provide
some insights.
Metered Water
Description
Cost in EC $
Basic charge per month- all connections
10
Additional charge based on water
consumption
0 5000 gallons
5 per 1000 gallons or part thereof
5,000 15,000
8 " " " "
> 15,000
15 " " " "
Industrial or commercial
10 per 1000 gallon or part thereof
Ships
35
Government Buildings and Offices
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Un-metered Water
Description
Cost Per Month EC $
Domestic
House with 1 tap
6
House with 2-3 taps
10
4- 5 taps
20
6 7 taps
30
>7
35
Commercial based on no. of employees
1 5 employee
50
6 15
90
16-29
155
>29
175
Instillation or Relocation of Water Connection
Diameter of Pipe
Cost in EC $
¾ inch
35
1 inch
60
1 ½ inch
70
2 inch
80
2 ½ inches
100
3 inches
150
4 inches
350
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The fact that all water used in St. Vincent is surface water should not be seen as
indicative of the absence of ground water but of the adequacy of surface water.
The adequacy or abundance of surface water has not encouraged reuse and or
recycle. Vincentians therefore have an aversion to the concept of reuse or recycle
when it relates to water.
Land Use/Land Tenure:
Approximately 29% of St. Vincent is covered by forest. Seventy percent of this is
natural forest, 25% "planted forest", and about 5% agro-forest. The "planted"
forest reflects reafforestation efforts by the Forestry Department in its fight against
deforestation, the fulfillment of it forest conservation mandate and its effort to
maintain the watershed areas. The Forestry Department encourages and practices
agro-forestry as a means of preventing land degradation on slopes while making
the effort economical viable.
The other major land use activities in St. Vincent include agriculture, mining
(quarrying) and construction (houses, roads, hard courts etc.). A deciding factor in
land use is that of land tenure. Most if not all agriculture lands are privately
owned. Owners are allowed to sell, subdivide or change use at will. The problem
arises when agriculture lands are converted to housing. Displaced farmers are then
forced onto marginal lands or to squat on crown lands often forest. There are
some tracts of forest that are privately owned. Again, these can change use at will
even though it is not in the best interest of the nation. Fortunately, most of the
watershed areas are in crown lands and are protected by the Conservation Act. In
spite of this protection, illegal farming is still a concern for forest conservation
especially in the Soufriere Hills. Notwithstanding the aforementioned scenarios,
watersheds and water resource management is most effective on crown lands/forest
conservation areas. The situation can however be improved by giving more legal
protection to watershed areas.
In an effort to address the need for agricultural lands, the government has carried
out at least three land reform programmes over the last twenty years. In two cases,
government acquired privately owned estates and subdivided them into small plots
to meet the needs of peasant farmers. Unfortunately, there was no mechanism in
place to stop the more enterprising and less needy members of society from
owning these plots.
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The Central Planning Department in the Ministry of Finance and Planning
maintains a database on land use. GIS mapping is used to record changes in land
use as designated by zoning laws. The mapping system is further informed by data
obtained from population and agriculture census.
The topography of St. Vincent lends some support to the protection of watershed
areas. The steep slopes allow excess water to drain away preventing flooding and
flood related damage. Flooding is therefore more likely in the lower elevations.
There are no records of serious floods in St. Vincent but current coastal
development patterns are creating flood-like conditions in the coastal towns.
GROUND WATER:
The apparent abundance of surface water has lured authorities and the nation at
large into complacency. As a result, there are no established procedures or
mechanisms to deal with droughts. The only emergency mechanism in place is at
the individual or family level. The CWSA has some small reservoirs used in the
everyday and distribution of water. These will provide only limited security in an
emergency.
Ground water as a resource has not been adequately studied, hence, its true
potential is not known. Whatever source exists should be in pristine condition, free
of saline intrusion despite the apparent rise in sea level. Because underground
sources have not been identified, no extraction has been done and there is no
protection mechanism in place. However, saline water contamination should not
be a problem since any or all lenses are expected to be fully charged.
There is no reliable data on sea-level rise or land subsidence. Some preliminary
data generated by the Sea Grant project (University of Puerto Rico) and the
Caribbean Planning for Adaptation to Climate Change (CPACC) exists. Some of
this data is treated as personal and not readily accessible. The CPACC data exist
electronically but not in a user-friendly format. Some effort is currently being
made to convert the data to a more useable form.
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PUBLIC PARTICIPATION:
The Forestry Department has an Environmental Education Unit that conducts
school outreach programmes, community and farmers' group programmes. These
programmes focus on forestry and conservation topics, and watershed management
and practices. In addition, all forestry development projects carry a public
awareness component designed to involve the community in decision-making and
management through information exchange.
The Marriaqua watershed rehabilitation project is a case in point. This project,
which is supported by the NRMU, is designed to involve the local community in
managing their watershed. The watershed has been negatively impacted by
encroachment. Now, through the efforts of the Forestry Department a management
team has been put in place. The core group is comprised of farmers, community
members, Forestry officers and officers from the CWSA. The group has so far
conducted two community consultations and has several other activities planned
for 2001. Forestry officers from St. Lucia and Grenada recently visited the area
and spoke with the management team. This activity is being seen as a model for
community watershed management in the sub-region.
Similar activities have been conducted in the past with varying degrees of success
but records of these exist mainly in the minds of participants. A good example is
the Zion Hill project in Barrouallie. Here, a denuded hillside overlooking the town
was converted to an agro-forest through the effort of the extension officer and
some community members. The project encountered resistance in many forms but
today the green hillside is testimony of the success, however, there is no data on
this project. The point is thus made that public awareness programmes are not
sufficiently institutionalized given the contribution they have made to
environmental development and sustainability.
The now defunct National Trust of St. Vincent and the Grenadines has contributed
significantly to the creation of environmental awareness in this country. Evidence
of their once active campaign in favour of environmental sustainability can be seen
in documents like the Environmental Profile and some environmental regulations
(Acts) of SVG. Radio Jingles about the environment still bears the name of the
National Trust. In parallel with the National Trust is the community-based
organization called JEMS. This organization was instrumental in preserving the
Kings Hill Forest reserve (one of the oldest in the Caribbean) and is credited with
being the only organization to challenge the issue of sand mining at the national
level. At several points around the country there are trees, plaques and other
landmarks that tell the story of community involvement in sustainable
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development. It is true to say that the physical evidence does not do justice to the
number of initiatives or the effort and resources expended by NGOs, CBOs and the
private sector in the management of environmental resource in St. Vincent.
In all of these activities mentioned, gender issues were addressed. It should be
noted that the Forestry Department is very gender sensitive. This is due in part to a
1993 study entitled "Enhancing the Involvement of Women in Forestry in St.
Vincent & the Grenadines. The study pointed to a lack of female in forestry
activities at that time.
Other water related studies conducted includes:
· Land use and agricultural practices (for the Cumberland project)
· Watershed management in the Buccament Valley (NRMU,
USAID).
· Land use Conflict in Montreal.
· Colonarie Forest Inventory (USAID).
DATA INFORMATION MANAGEMENT:
The meteorology office at the E.T Joshua airport collects and manages data on
wind speed, rainfall, humidity and temperature. This effort is supplemented by
data collected from a monitoring station located on the coast guard base at
Calliaqua. This data is transmitted and stored in electronic format. This data is
also transmitted to CMIH for further processing and storage. Rainfall data is also
collected by VINLEC and the Forestry Department in the Ministry of Agriculture.
These two agencies store their data in hard copy format.
Water quality monitoring is done by the CWSA and the Environmental Health
Department (EHD). Again the data exist only in hardcopy format. There is no
monitoring of recreational waters including coastal waters. While the EHD uses
hand held kits (supplied by CEHI), the CWSA is moving towards instrumentation.
However, the laboratory at the CWSA is still being equipped and does not have a
full range of desired instruments.
The Forestry department collects data on stream flow, rainfall and temperature for
selected areas. Climate data for Colonarie watershed (rainfall, evaporation and
solar radiation) is in the possession of the Forestry Department. There is only spot
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data (data for short selected periods) available for the Buccament, Yamboo and
Cumberland watershed areas.
While data collection in St. Vincent is done by Met. Office, VINLEC, CWSA,
EHD and Forestry, no one agency has a complete set of data. In most cases there
is a mixture of electronic and manual recordings. Overall, data collection is
disorganized and badly done. The major causes are lack of trained personnel, lack
of equipment, and the low priority put on data. In improving water resource data
management, there is need for a coordinated management strategy. While the
presence of several agencies allow for QA/QC and the filling of gaps, the current
fragmented approach allows for more gaps. Alternatively, specific agency can be
given specific assignments rather than random project related data collection.
There are several bits and pieces of research carried out by the Forestry
Department and the CWSA. However, there is need for some additional research
in the area of :
· Ground water resource
· Quality of surface water
· Watershed data collection and analysis to identify
trends
· Water resource and climate change issues
· Current status of watershed use and coverage
· Emergency management strategy for water.
INSTITUTIONAL FRAMEWORK:
The Forestry Department and the CWSA are the key players in water resource
management in SVG. Both of these are government agencies guided by legislation
approved by the country's judiciary. Provision is made in the legislation for the
amendment of Act or regulations as the need arises. Acts referred to here include:
· Forestry Conservation Act 1992
· Wild-life protection Act 1987
· CWSA Act 1991
· Public Health Act 1977.
· Environmental Health Services Act 1991
As a government agency, the Forestry Department is subjected to the civil service
ordinances. This means that the current freeze on employment affects staffing in
this department and hence the work programme. All monies generated by this
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agency goes into the consolidated fund. In a reciprocal manner, the agency
receives its funding from the consolidated fund. There have been several bilateral
arrangements between this agency and other regional and international agencies
(USAID, FAO, DFID and NRMU). These arrangements provide technical and
financial support to the local agency in order to elaborate its work plan and
improve its capacity for delivery.
Being a statutory body, the CWSA has less financial restrictions than the
Department of Forestry, hence, staffing is less of a problem here. Activities of the
CWSA are guided by the decisions of its board of directors. Also the CWSA can
negotiate loans independent of government though with their approval.
HEALTH ISSUES:
Human intrusion into water catchment areas poses special problems for managers
of water resource. The intrusion comes in the form of agricultural encroachment,
pleasure seekers, eco-tourism, and subsistence activities. In the case of agriculture,
the land is cleared, tilled and agrochemical applied. During periods of heavy rains,
the topsoil and the chemicals both enter the stream flow reducing water quality.
This activity also reduces soil water retention hence the quantity of surface water
available in dryer periods. It should be noted that the epidemiological surveillance
carried out in SVG is intended to tract infectious and life style diseases and that
there is no record of health impact due to pesticide use in agriculture. There are
some records of pesticide being used with criminal intent and in suicide attempts
but these are only in police and hospital files.
Pleasure seekers and eco-tourism share a common impact. They do not always
bring back the waste generated while on the hike. Body waste, plastics and
unwanted food scraps are left in the forest. Because persons are not screened
before entering these "protected" areas, it is possible that they may carry water
borne diseases into watershed areas.
Subsistence activities in the watershed include digging for root crops, hunting of
animals for food, and harvesting of timber or vines from the forest. These impacts
are similar to those discussed earlier. They include deforestation, soil erosion, use
of chemicals (to stupefy animals including aquatic ones in order to capture them)
and deposition of human waste and solid waste.
The above problems are compounded by the absence of fulltime employees to
manage/monitor watersheds. There have been several incidents of persons using
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agrochemicals to catch fish/crayfish at points where potable water is collection and
treatment. Improved supervision can eliminate this problem.
Apart from some outbreaks of gastrointestinal disease among infants, there is no
recent record of waterborne disease problems in St. Vincent. The latest record of
such an event is the cholera epidemic of 1935. There have been some recent
dengue warnings since the mosquito carrying the disease is known to inhabit the
island and a few confirmed cases of the disease recorded.
TRANSBOUNDRY THREATS:
There are no real transboundary threats to fresh water in St. Vincent. The upper
basin of the thirteen (13) watershed areas in St. Vincent radiate from the central
mountain range which is protected by the Wildlife Protection Act of 1987. The
wildlife protection act also gives some protection to waterways by making it an
offence to use deleterious substances in the catching of aquatic life in streams and
rivers. The national Forest Boundary survey of 1993 (not yet enacted by law)
would also give protection to the upper watershed areas that are still forested.
Protection of coastal waters is another matter. While the Basel Convention (to
which SVG is a signatory) prohibits the transboundary movement of hazardous
waste, it does not, and indeed cannot, prevent the pollution of coastal waters by
polluted rivers flowing out of neighbouring countries. For example, waters from
the Amazon and Orinoco impacts the entire Caribbean Sea.
POLLUTION:
In St. Vincent, pollution of watershed by land-based source is restricted to
agrochemical leaching, direct agrochemical influx from aerial spraying and
indiscriminate disposal and improper disposal of solid-waste. However, surface
water in the lower coast of the river and coastal waters are severely impacted by
industrial and commercial discharge, liquid waste, and storm water runoff from
city streets and construction sites.
All of the above cases are compounded by sedimentation occasioned by
deforestation and poor agricultural practice. In is not unusual for water to arrive in
homes heavily laden with sediments despite having passed through the treatment
process (sedimentation, filtration and chlorination).
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CLIMATE CHANGE AND NATURAL DISASTERS:
Because the watersheds in St. Vincent are in elevations above 300 m, they are not
yet impacted by sea-level rise. While sub-surface water is not used on mainland
land St. Vincent and the impact of sea-level rise on this source unknown, sub-
surface water is used in the Grenadines and there is unconfirmed report of salt
water intrusion in this area.
Predictions are that the frequency and intensity of storms will increase as the
phenomenon of climate change intensifies. In the Caribbean, anecdotal evidence
has shown that there is some change in climatic conditions occurring.
Severe storms have cause damage to forest, riverbanks and water supply
infrastructure on the island. Despite these warnings and setbacks, there is no
national programme aimed at addressing climate change related disasters. The
country has just presented its National Report to the Conference of Parties. The
report indicates plans to develop a national response strategies in the areas of water
resources, agriculture and infrastructure development.
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CHAPTER 2
CURRENT COASTAL AREA MANAGEMENT ISSUES
COASTAL HABITATS AND ECO-SYSTEMS:
The NRMU concept of Island System Management is very appropriate for island
states like St. Vincent where the greatest possible distance (as the crow files) from
the water source to its coastal destination is nine miles, and where a single agency
has responsibility for management. For this reason, the information presented for
watershed management in chapter one is applicable for coastal area management
with some modification. The Fisheries Department (a division of the Ministry of
Agriculture and Labour) is the only new player, and the major player in coastal
area management.
St. Vincent and the Grenadines is a signatory to Marpol and the United Nations
Convention on the Law of the Sea (UNCLOS). These conventions make provision
for the delineation of marine borders. Accordingly, St. Vincent and the Grenadines
has established a 200 mile Exclusive Economic Zone (EEZ). Jurisdiction of this
area is more than the country can effectively patrol and manage but the resources
of this area is under state control. The national coast guard unit in conjunction
with the Fisheries Department oversees the EEZ.
The Fisheries Conservation Act designated some ten (10) conservation areas
within the EEZ. One of these, the Tobago Cays, has been legally designated a
marine park. The problem with management of this park is the absence of clear
policy guidelines for its operation. There is a skeleton staff with no clear mandate,
no equipment (patrol boat), and no financial support. In brief, the park remains a
"free for all". As a result, over exploitation of the resource is a problem. There are
also records of illegal fishing by developed countries in the EEZ managed by SVG.
Coral reefs are being destroyed, fish stocks depleted and water quality
compromised by waste disposal problems. The government of St. Vincent and the
Grenadines is in the process of compiling a Local Area Development and
Environmental Management Programme for Union island, Mayreau, and the
Tobago Cays (part of the Grenadines) where the most extensive and well-
developed coral reef complex in the country is located.
There are several other areas in the Grenadines and mainland St. Vincent where
coral reefs are being impacted by land-base sources of pollution (liquid and solid
waste, agrochemical leachate, commercial waste and hydrocarbon residues).
These reefs are in various stages of decay. All reefs around SVG support fish life
17
and some are hatcheries for lobsters. Several species of reef fish (pelagic) and
bottom feeders inhabit these waters. Several species of migratory fish and
mammals share these waters.
There are two mangrove forests (wetlands) on the south east coast of St. Vincent
but the major sites are in the Grenadines (Union Island, Canouan). These forests
are threatened by coastal development. The need for coastal accommodation to
support tourism is hastening the destruction of mangroves.
INSTITUTIONAL FRAMEWORK:
The Fisheries Department is an arm of the Ministry of Agriculture hence it is
guided by the civil service ordinances and the dictates of the Minister of
Agriculture. There are some Acts and regulations specific to this agency that
further guides its operation. This agency has a well-developed database on its
resources having benefited from the now defunct CFRAMP and bilateral
arrangements with the Japanese.
The Fisheries Department supports the development of a fisherman's cooperative
and views this as a line of communication with stakeholders. Frequent
consultations are held between both parties to determine some operational policies.
The Department also has a PR unit that shares information with schools and other
interested resource users.
LAND-BASED POLLUTION:
Land based pollution has severely impacted coastal resources in a negative way.
Divers have reported large amounts of polythene (from agriculture) and pampers
(from community solid waste) sitting on coral reefs. These objects effectively
shield the coral from light causing coral death. This is similar to the problem
caused by sedimentation. For some hours following heavy rains, coastal waters for
as much as a mile seaward of the shore line, is discoloured by sediment. The sea
takes on the appearance of the muddy rivers that flow into it. Such levels of
sedimentation destroy habitats and kill juvenile animals. This form of
sedimentation is associated with deforestation, poor agricultural practices and
landslides.
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HEALTH/TOURISM:
Land based pollution makes coastal waters unsafe for recreation. Turbid water is
both unsafe and unhealthy for swimming or diving. Additionally, chemicals from
agriculture and pathogens from animal or human waste can cause poisoning and/or
infection. These concerns run counter to tourism demands and does nothing to
help the government's effort to improve tourism.
CLIMATE CHENGE:
If climate change is responsible for the intensity of storms and storm surges
experienced over the last five years, then indeed it is responsible for major coastal
erosion in St. Vincent. Some areas on the north windward side of the island have
had as much as 25 m shoreline recession over the last five years. On the north
leeward side of the island, waves from hurricane Lennie destroyed ten (10) meters
of coastal forest that stood for over fifty years. The same storm destroyed the
coastal access road 15 m inland at Richmond and swept away a small coastal
village in Rose Bank. The new cruise ship berth at port Kingstown also received
damage from Lennie.
Record exist of storm damage to Port Kingstown and several other areas in SVG
over the last five years, yet there are no concrete measures in place to address
climate change impacts. There is a disaster preparedness unit in the Ministry of
Housing but this is poorly staffed and equipped though the emphasis is on
hurricane response. This unit is affiliated to CDERA hence it has some regional
links.
MARINE RESOURCE EXPLOITATION:
All marine resources in SVG are over exploited. The active construction industry
in St. Vincent vigorously extracts sand and aggregate from coastal stocks. Because
of the severe negative impact of sand mining on the coast, government has put
initiatives and incentives in place to reduce the impact. The incentives include tax
concession to developers using imported sand and the availability of imported sand
to other construction personnel.
No replacement has been found for the gravel so its extraction continues unabated.
Further, no alternative employment has been found for the peasants who eke out an
existence in this way.
19
Some draft legislation on sand mining exists but there is no political will for its
enactment or enforcement. Similarly, the Town and Country Planning Act of 1991
includes setback limits for coastal development but these are often ignored.
Aquaculture is not an established activity in St. Vincent and the Grenadines, hence
there are no concerns about its possible impact.
TRANSBOUNDARY THREATS:
It is known that some small ships and pleasure crafts traversing the waters of St.
Vincent and the Grenadines dump their solid and liquid waste into the sea.
However, this is within the EEZ and may not qualify as transboundary. [see chapter
1 for related information]
PUBLIC PARTICIPATION:
In an effort to address coastal pollution and management issues, the Ministries of
Health and the Environment and Finance and Planning have teamed with the
private sector (hotel owners, dive operators, and entertainers) to put in place a
consultative process to address pollution in south east St. Vincent. Several
meetings were held and decisions made but little execution was done. The NRMU
at one time assisted the process offering technical support but no action resulted.
A similar situation developed between JEMS and the community group operating
at the Brighton Salt Pond. This activity resulted in the erection of toilet facilities
and a garbage collection in that recreational area. However, lines of authority are
still unclear and the adjacent landowner still has some grouse.
20
CHAPTER 3
INTEGRATED WATERSHED AND COASTAL AREA MANAGEMENT.
There is in St. Vincent and the Grenadines, to some extent, the integrated
management of watershed and coastal area. Because in some areas the forest
borders with the sea and in other areas wetlands borders the sea, this physical
reality gives the Forestry Department total management of the entire system.
Notwithstanding, the CWSA Act gives that agency total control of the water
resource trapped in the forest. For this reason, if for no other, the two agencies
must coordinate their activities. Discussion with both agencies revealed a high
level of cooperation and mutual respect. There is some unclear financial arrange
between the agencies but this has not hampered their work.
Public participation in the management of the resources in question is of prime
importance but is not institutionalized. The fact that neither the CWSA nor the
Forestry Department possesses the man-power to police a resource as vital as
water, and that the public has almost free access to this water is a major concern.
This public access must not be slighted since many persons depend on the forest
for their livelihood. The emerging interest in eco-tourism brings private sector
involvement and another level of complexity.
The CWSA generates income through the sale of water harvested from the forest.
The Forestry Department generates a limited amount of funds from sale of other
forest products (timber, hunting permits) but this fund goes into the national purse
from which all government departments are funded. Tour operators market the
entire forest and get to keep the proceeds.
The foregoing discussion points to the fact that the management of watersheds
must take an integrated cooperative approach. The following problems must
however be resolved.
1) Which agency takes charge of a particular problem?
2) Which piece of legislation will be enforced when?
3) Who pays for what and at what cost?
4) What will be the structure of the management team?
5) How will conflicts be resolved?
6) Is there a role for community policing?
Whatever the management structure, it is clear that none of the groups can be
ignored. It is therefore necessary to strengthen public participation so that
21
representative of the public can sit in high-level management meetings where
policy decisions are made.
A crucial element in the development of such a management system would be the
financial implications. Forest resources have for too long been undervalued. In an
era of financial stress, the forest will have to generate its own finances and hence
an economic instrument will have to be developed to make this possible. Some
support may be available from the UNFCCC or the CBD but such support should
be seen as developmental, allowing the agency to do needed research and putting
in place emergency response mechanisms.
All of these proposals can only work if they pass the political test. Realistically, no
one should be dispossessed or marginalized and the resource should no be
compromised but this is often impossible when government's agenda is not
visionary in outlook and the politician inflexible.
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CHAPTER 4
National Action Programme to Improve Integrated Management of
Watershed and Coastal Areas
The development of any national action programme must of necessity be
participatory, transparent and broad-based. All possible stakeholders should be
involved at all stages of development in order to ensure successful implementation.
The resulting management structure and policies should be clear and acceptable to
all. This is extremely important given the absence of monitoring and the will to
enforce in many cases. In the absence of enforcement, morale suasion is deemed a
more acceptable means of achieving compliance than legislation, especially when
the final arbitrator is someone with the desire to be perceived as a good candidate
for public office. In any case, monitoring and evaluation are vital elements in any
development process.
In general, monitoring of environmental resources in SVG is poorly done. This is
probably because the true economic value of the resource is neither known nor
appreciated. In many instances, some instruments for monitoring exist but need to
be strengthened. The following examples are illustrative.
· Environmental Services Act no. 15 of 1991 makes provision for the control
of emissions and effluent discharge into water bodies but there are no
accompanying regulations to support this Act. There is a draft OECS
guidelines for effluent discharge but this has not been adopted or
incorporated into local laws and/or policies.
· St. Vincent and the Grenadines is signatory to MARPOL but no port facility
is in place to accommodate waste generated by small ships and pleasure
crafts. Additionally, small yachts with no holding tanks are permitted to
spend several days in port with their human cargo on board.
· Being a member of UNCLOS and situated in the part of oil tanker traffic,
SVG should have a well developed Oil Spill Response Protocol. However,
the only thing that exists is a committee chaired by the commander of the
coast guard. Efforts to develop a response mechanism have been hampered
by lack of local financial commitment.
· SVG has legislations for the establishment of marine parks but to date only
one, the Tobago Cays has been designated and there is no management
system in place for this park.
Following studies on recreational waters conducted by Dr. Archer and Dr.
Headley, the Environmental Health Department included the monitoring of
23
recreational waters into their strategic plan for 2000 but lacked the institutional
capacity to follow through.
For effective monitoring, a good public awareness programme is necessary.
Stakeholders and civil society must know what are their rights and responsibilities.
They must also be aware of the penalties for violating laws and their own
protection under the law. This is critical if citizen patrol is to be used to
supplement agency patrol.
One area where public education is urgently needed is the area of multilateral
environmental agreements. The obligations of these agreements are not
incorporated into the body of local laws. Consequently, these agreements are not
well enunciated in St. Vincent and the Grenadines. Implementation is therefore
weak and government centered. For example, despite the very liberal use of
agrochemical and the absence of proper disposal mechanism for used engine oils,
St. Vincent and the Grenadines has not yet signed on to the Protocol on Land
Based Sources of Pollution.
Working these into any integrated management plan will require more public
awareness and some legal undertaking. It should be noted, however, that MEAs
like the UNCBD, UNFCCC and UNCBD do overlap and can in fact strengthen
integration of work programmes. A good example is the database being developed
under CPACC (component 3). This database has the capacity to incorporate all
environmental data using GIS to display and overlay spatial and temporal data.
Recognizing this potential, the focal point has sought to incorporate the efforts of
the NRMU in the development of this database.
Institutional arrangements have proven problematic in this situation, for while
Ministry of Environment is coordinating the development of the database, the
repository is best suited in Central Planning where the GIS capability lies.
However, Planning lacks both the interest and manpower. Wherever the repository
falls, it will require maintenance. Since the data will have multiple users, who will
pay for the maintenance? The Fisheries Department has a small database and GIS
capabilities but prefers to remain insulated rather than opening up to national
participation for the greater good.
It is quite clear that a detailed database with many users will require an information
specialist to update and repair the system and assist users. Again the financial
system is in question.
24
In a Vincentian context, it would be necessary to ensure that there is legislative
harmony among the implementing agencies. This would require the harmonization
and updating of all relevant legislation related to the protection and sustainable use
of watershed resources in SVG. Currently in St. Vincent and the Grenadines, there
is a situation of overlapping between two agencies managing a single resource.
The result is that attempt at enforcement by one agency called into question
legislation from the other agency to the advantage of the perpetrator.
Another requirement of an integrated system is the need for constant review and
upgrade. This speaks to research and development. While members of staff may
possess the ability to conduct the necessary research the lack the time.
Additionally, government has made it clear that research is not a priority where
there is shortage of money. Private sector support could be the answer to this
problem. If the private sector is willing and/or allowed to take their place in
development, they could augment government's contribution to capital projects in
a creative way to the benefit of the nation. It should be noted that some schools
currently assist the forestry department in monitoring a watershed and that there
are plans to expand this programme.
As can be seen from this report, several national activities past and present have
public awareness components that begin and end with the initiatives. This is
undesirable and counter productive. There is need for a structured public
education programme that will support any and all national or regional initiatives.
This way, the small budget line allocated to PA can have a multiplied effect.
Increase public awareness will give the average citizen a greater sense of
involvement and ownership of the activity thus ensuring sustainability.
The development of any action programme to improve integrated management of
watershed and coastal areas in St. Vincent and the Grenadines must address the
following:
1. Location and ownership of the initiative.
2. Acceptance by all Ministries and Departments to facilitate intersectoral
cooperation.
3. Built in local funding through existing or new projects.
4. The development of economic instrument to ascertain the true cost of the
resource so freely enjoyed but for which no one pays.
5. Harmonization of legislation and adaptation of regional guidelines and
policies where necessary.
6. Human resource development.
25
7. Development of an electronic database with links to other regional
databases.
8. A work programme or agenda that takes into consideration the work of other
agencies involved in watershed management.
CHAPTER 5
Recommended Inputs to Regional Action Programme.
While institutional arrangements, developmental levels and bilateral arrangements
may support island specific activities, there are some common trends which can
foster the advancement of a regional approach to integrated management of
watersheds. The topography and general geography of the Caribbean ensures
similar rainfall and drainage patterns. The history of the region also puts the
islands on the same developmental path. Most countries having no mineral wealth
build their economies around agriculture and along the coast. Being coastal
communities, exploitation of coastal resources is common. For these reasons, the
following suggestions are made:
· The development of a training programme that stresses on the job training
and exchange of personnel and information. The training should include
aspect of co-management, participatory development and the science of
water management and monitoring. This activity will support human
resource development and institutional strengthening.
· The establishment of effluent discharge standards appropriate for the
region and the ability to monitor these discharges locally.
· Analysis of food and water for pesticide residue, dyes and heavy metals.
This can lend support to or draw from the convention on Persistent
Organic Pollutant (POPs).
· Support for the harmonization of legislation at the local level to facilitate
corporation among and between local agencies. There could be a regional
template that can guide the local work.
· Exchange of professionals working in watershed management to facilitate
transfer of knowledge and skills.
· Support for the incorporation of data on watershed projects, including
recommendations developed from final technical output, into existing
regional databases.
· Improve local climate data collection, analysis and storage for watershed
area through regional training and technical support.
26
APPENDIX 1
CASESTUDY
Country Name:
Saint Vincent and the Grenadines (SVG)
Project Title:
Development of a Management Plan for the Buccament Valley
Background
The Buccament valley is situated on the south west coast of St. Vincent approximately six
kilometers north of the capital city of Kingstown. Buccament Bay forms the sheltered seaward
boundary of the valley, which stretches up to mountain forest reserve areas above Vermont.
Buccament is roughly trapezoidal in shape, being narrowest at the coast and widest,
approximately one mile across, in the central range. The Buccament River transects the valley.
It is both a source and a sink for a number of activities. The upper area of the valley is a forest
reserve and a critical watershed. This watershed provides a large percentage of the nation's
potable water and is the main source of drinking water for capital city Kingstown (Fig II).
In 1998, the then parliamentary representative of the area requested the OECS-NRMU to
develop a management system for the area. The system was required to protect the resource and
increase the benefits derived from the resources through employment creation.
Goal
To provide a framework which facilitates the development of a sustainable and integrated
systems of resource use in Buccament Valley.
Objectives
· To establish guiding principles for the development of sustainable resource use and to
identify a structure, which will allow for community based identification and
prioritisation of current resource management needs.
· To identify a management structure which provides for channels of communication,
collaboration and co-operation to facilitate more effective co-management within Buccament
Valley.
· To develop a strategy that works towards concensus based decision making for local area
management of the multiple resources used within the Buccament area.
27
Approach
This project establishes a functional plan for the sustainable development and management of
resource use in Buccament Valley. In the then situation, there were multiple resource users with
the potential for conflict if not managed in an integrated way. (Management and development
initiatives to date have tended to be fairly fragmented).
The proposed management provided a coherent structure for long term planning of resource use
in the valley and was expected to be a tool to facilitate the development of effective co-
management. The management structure therefore enabled key stakeholders to identify and
address changing management concerns through its framework. It was therefore consensus
based. This management plan was seen as a mode for community driven approach to
management.
The management plan provides forums for collaboration and co-ordination and facilitated
channels of communication between all stakeholders. The management process was to be
community led such that identification of issues and remedial strategies came form stakeholders
within the valley.
A major concern was how to establish and sustain the commitment of local groups throughout
the process. It was important that the communities of the valley felt committed to and took
ownership of this local area management (LAM) process.
Analysis of the issues and patterns of socio-economic organization was used to explain how co-
management could operate within the valley. This leads to the development of the management
framework that supported community lead management.
The integrated co-management framework proposed for the valley built on existing socio-
economic patterns. This flexible structure allowed socio-economic groupings to address specific
area and sector needs and yet remain within the overall integrative framework.
The co-management framework essentially provides the mechanism for achieving sustainability
and integration. (Fig 1)
Analysis of resource use management issues among the socio-economic sectors of Buccament
Valley was conducted through extensive consultation with the communities of Buccament
Valley, government agencies and other national stakeholders. A number of studies outlined the
then patterns of resource use and the associated resource use issuesi. This information base was
used to develop an action oriented matrix which looked at potential management mechanisms for
achieving integrated resource use management and development for Buccament valley. The
28
matrices provided and initial tool to guide LAM committees in the development of resource
management strategies.
The LAM authorities identified the issues as they emerge and their own ability to develop
community driven projects to address and monitor such changes.
Conclusion
Despite more than fifty meetings of various sorts and at different levels over a period of one
year, the objectives of this management plan were not achieved. Only a few of the specific
activities such as training of individuals and identification of potential income generating
activities were done. The channels of communication, collaboration and co-operation to
facilitate more effective co-management within the Buccament Valley were never established.
Therefore, the resources in the valley are still in need of coordinated management and the
employment situation unchanged. .
29
30
31
References
1. OECS NRMU A management plan for the Buccament Valley, St. Vincent and the
Grenadines. Strategy for a community based Co-Management Partnership. 1999
1 Ishamel Len, (1994) SVG Integrated Resources/Parks and Protected Areas Management Buccament Valley Pilot
Project Action Plan 6-10 1993, MAREMP/ OECS/NRMU
Coathup D (1996) The Buccament Valley An Eco-Tourism Pre-Feasibility OECS/NRMU
Anthony D (1997) The Flora and Fauna of the Buccament Valley, St. Vincent and the Grenadines An Inventory
OECS/NRMU.
Ishamel L (1994) Buccament Valley Integrated Demonstration Project Legislative and Institutional Review.
Kacal A S (1994) Buccament Valley, St. Vincent, Its people and natural resources. Opportunities for community
participation in development. A thesis submitted in partial fulfillment of the requirements for the degree of Master
of Science in Marine Resources and Environmental Management. UWI.
i Ishamel Len, (1994) SVG Integrated Resources/Parks and Protected Areas Management Buccament Valley Pilot
Project Action Plan 6-10 1993, MAREMP/ OECS/NRMU
Coathup D (1996) The Buccament Valley An Eco-Tourism Pre-Feasibility OECS/NRMU
Anthony D (1997) The Flora and Fauna of the Buccament Valley, St. Vincent and the Grenadines An Inventory
OECS/NRMU.
Ishamel L (1994) Buccament Valley Integrated Demonstration Project Legislative and Institutional Review.
Kacal A S (1994) Buccament Valley, St. Vincent, Its people and natural resources. Opportunities for community
participation in development. A thesis submitted in partial fulfillment of the requirements for the degree of Master
of Science in Marine Resources and Environmental Management. UWI.
Document Outline